中国电信业的发展与体制变迁（1949—2000）

【作者】 王鸥；

【导师】 董志凯；

【作者基本信息】 中国社会科学院研究生院 ， 现代经济史， 2001， 博士

【摘要】 中华人民共和国成立50年来，中国电信业经历了一条艰难曲折的发展之路。这一艰辛历程，既有长期国家垄断通信的历史成因，又有我国经济、技术落后等方面的发展因素，更有需要我们深入研究探索的体制渊源。当前电信发展和体制变革都处在一个十分关键的历史时刻，产业结构的重组和管制框架的建立必须既正视历史、又面对现实。为此，本人选定《中国电信业的发展与体制变迁（1949～2000）》作为自己的博士学位论文。 建国以来，政府始终是业内发展和体制变迁的主体。改革开放以来，电信业的高速发展主要是由中央政府的产业政策所驱动的；通信体制的变迁主要是由相关工业主管部门间关系的演化所引发的。然而无论是产业政策驱动的电信业历史性飞跃，还是电信超常规发展对通信体制形成的巨大冲击，都渊源于高度集中的计划经济体制。因此，对电信业研究必须以这一时期为基本出发点。基于这一认识，本文在第一章《导论》中考察了传统电信的产业构成与基本特性，简略地回顾了中国古老而悠久的通信发展史后，就进入了论文研究的起点---计划经济时期的通信发展与体制形成。 第2章首先回顾了邮电管理体制的初创与“条块”关系的形成，考察和分析了计划经济时期邮电通信的发展政策与邮电管理体制的基本特征。本文接着论述了中央政府对邮电部门的严格财务控制和计划管理，这些使得邮电部门不但失去了自我发展的基础，而且难以发挥其经济运行中的重要作用。本章最后分析了通信管理体制的组织构成、工业主管部门的基本性质及相互关系，在此基础上得出本章的结论：由于计划体制下的“条块”分割，通信自身发展又极其落后，邮电部仅仅实施其内部管理，根本无须行使其行业管理权限；高度集中的计划体制使管理权限越来越集中在中央一层，中央政府在通信发展决策上起到了关键性的作用，由此构成的中国通信发展中基本的组织结构和管理体制。这一组织结构和管理体制对中国通信发展将产生十分深远和重大的影响。 第3章在回顾了改革开放初期通信产业定位的基础上，考察了贯穿整个80年代，中央政府为促进通信发展所确立的产业政策的详细内容。产业政策的陆续出台在为邮电通信发展注入巨大投入的同时，也必然对邮电投资体制产生重大影响。一方面推动了邮电通信的超常规发展，另一方面形成了邮电通信发展中高投入、低效率的基本特点。同时通信发展大大超出了邮电系统，遍布全国“条条”与“块块”的各类专用网迅速扩张。通信的高速发展不能不对变革滞后的管理体制产生巨大的冲击与震荡。 第4章以改革开放后区域性通信发展与体制变迁为背景，以地区专用网发展为基础，分析在“块块”通信发展中管理体制的基本矛盾。通信发展、特别是市话发展离不开地方政府的参与，在恢复了邮电部与地方双重管理体制后，中央政府逐步确立了地方政府参与通信发展的基本方针与政策。随着对投入的增加，电信发展越来越涉及到了地方政府的切身利益；邮电部门在实施以省为单位的经济核算制的过程中，也凸现了其强烈的部门利益取向，并强化了其政企合一的基本性质。这些变化在促进区域性通信快速发展的同时，也构成了在地区通信发展中体制矛盾的基础。本章最后通过黑龙江省地区专用网和大庆市的典型案例，分析了在区域性通信发展中体制矛盾形成的基本原因。在地方通信发展中，矛盾表面反映在邮电公网与地区专网互连互通的问题上，问题的实质却是双方尖锐的利益矛盾冲突。 第5章分析在“条条”发展中通信管理体制的基本矛盾。计划体制下形成的交叉重复的生产领域，体制转轨过程中逐渐演化为部门间的相互竞争关系，构成了日趋强烈的部门利益。伴随着巨大的需求与投入，一方面电信发展成为了一个遍及全国“条条块块”的行业，行业管理势在必行；另一方面电信业成为盈利颇佳、前景无限的领域，产业进入成为必然，当集行业垄断与行业管理于一乌的通信主管邮电部，在开始履行其行业管理职贡的同时，也利用其权力阻止拥有部门专网的相关政府部门的产业进入，这不能不但部门间的关系更加复杂：邮电部与相关工业主管部］］，已不仅仅是行业垄断者与潜在竞争者之间的关系，而且成为了行业的管制者与被管制者之间的关系。部门关系的变化使部门冲突与矛盾进一步升级；尽管中国联合通信有限公司最终得以成立，但无可避兔地在全国范围内进一步地激化通信管理体制的矛盾。笔者通过对不同层面上政府部门的基本行为及其变化的分析，特别是联通成立前后邮电部门行为方式的变化，进一步剖析了中国通信管理体制的基本矛盾。 第6章主要内容是市场国家电信发展与体制变革的经验与启示。本章首先考察了市场国家政府进行市场干预的基本理论与历史实践。针对市场失灵，市场国家政府对微观经济的直接经济性干预；主要集中在自然垄断行业，政府针对自然垄断产业所采取的基本手段是国家垄断与政府管制，由此在电信发展中逐步形成了两种政府管理模式：国家垄断、政府经营的欧洲模式与私人企业?更多还原

【Abstract】 Telecommunications industry of China has experienced a long match full of hardships for 50 years since the founding of the People’s Republic of China. Right now, both the development and the reform of the industry are coming to a turning point -to shift the industry structure from monopoly to competition and to set up the government regulation system. To challenge this historic moment, we must not only face the reality of the industry, but also trace back its arduous history. Thus I choose the topic "The Telecommunications Development and the System Change of China-From 1949 to 2000" as my doctoral dissertation.For more than 50 years, the government not only has played a key role, but also has dominated the telecom industry. Particularly since 1978, the extraordinary high-speed development of telecommunications was driven by the government industry policies; the radical change of the administrative system was triggered by the interest conflict of the government branches. Both of which originated from the central planned economy period (1949-1978); therefore, the research on the industry must be based on this part time of history. Based on this idea, after studying the structure and characteristics of the telecom industry and sketching out the long history in this area before the founding of P. R. China in the Introduction Chapter, the paper starts from the very beginning of the telecommunications development and the forming of the administrative system.Chapter 2 focuses on the long history for 30 years during the period of the central planned economy. It first reviews founding the Post-telecom Administrative System, (PTAS) which includes the Ministry of Post and Telecommunications (MPT) and the relationship with the other ministries and regional governments. Then the chapter deliberates the characteristics of the system and the developing polices. During this period, the rigid finance and the limited investment control by the central government (CG) made the post-telecom section not only lost chance to develop itself, but also hardly played its due role in the economy. Having analyzed the basic characteristics of PTAS and the characteristics of the government ministries as well as their interaction, the author reaches the conclusion that MPT’s function was only limited to its interior administration rather than exercising its power over the whole industry. At the same time, the power shifted to the central government with the forming the central planned system. This Government Economic Administration Structure (GEAS) will have long and profound influence on the future telecom development.Chapter 3 reviews the central government’s telecom industry policies formulated throughout 1980’s in details. Enforcing the policies not only made the huge investment in the industry, resulting in the unconventionally rapid development, but also had enhanced the way of traditional investment mode, bearing the particular characteristics of high-input and low-efficiency. At the same time, development of telecommunications went far beyond the post-telecom section. The rapid expansion of both the public network and the private networks have had a great impact on GEAS.Chapter 4 studies the fundamental problem of GEAS in the local telecommunications development based on the regional private networks. The telecommunications network, especially local telephone cannot fully develop without being supported by the local governments, so the central government established the basic policies step by step that local governments should participate in more telecom construction. Local governments became more and more cared about their economic interests with the more investment; provincial administrative bureaus of MPT were showing more and more economic interests too, with the reforming of the MPT interior accounting system, which also further intensified its basic characters of integrating administration and management together The role changing of the two sides formed the base of the problem of the regional government administrative s更多还原